Gecekondu ıslah bölgelerinin yeniden planlanmasında kullanılabilecek bir yöntem önerisi

Abstract

ÖZET II. Dünya Savaşından sonra görülmeye başlanan kırdan kente göç olgusu ve bunun sonucunda ortaya çıkan hızlı kentleşme, gelişmekte olan ülkelerdeki hızlı nüfus artı şıyla birleşince nüfusun barınma gereksinimi karşılana- mıştır. Bunun sonucunda Türkiye'de gecekondu, diğer ülke lerde farklı isimler alan bir barınak türü ortaya çıkmış, zamanla bu barınaklar büyük kentlerin alanlarının yarısın dan fazlasını kaplamıştır. Yönetimler ise soruna sadece fiziksel ve sayısal boyutta yaklaşmışlar ve çeşitli yasa larla gecekondu yapımını önlemeye çalışmışlardır, önceleri barınma amacıyla yapılan gecekondular, zamanla kiraya verme amacıyla yatayda ve düşeyde büyütülme- ye başlamışlardır. Fiziksel bakımdan derme çatmalıktan standard malzemeye, yasal bakımdan ise mülkiyet s iz İlkten mülkiyeti! duruma doğru bir gelişme göstermişlerdir. İlk zamanlar kentlerin çevresinde bir kuşak oluşturan gecekondular, kentlerin büyüyüp genişlemesiyle kentin içinde kal mışlardır. Yapı kalitesi ve mülkiyetteki gelişmeye rağmen, kentlerin bütün altyapı ve donatımlarından yararlanabilen bu alanlarını plan dışı alanlar olarak kaldıkları ve kentle bütünleşemedikleri görülmektedir. Bu alanların planlı kentsel dokuyla bütünleştirilme si amacıyla Islah İmar Planları yapılmış fakat uygulama lar sonucunda bu planların pekçok nedene bağlı olarak ba şarısız olduğu görülmüştür. Bu çalışmanın amacı - gecekondu ıslah bölgelerinde bu - güne kadar önemli bir başarıya ulaşamamış planlama ve uygulama yöntemlerini çeşitli yönleriyle irdeleyerek, bu bölgelerin kentle bütünleşmesini sağlayabilecek bir plan lama yöntemine ulaşmaktır. Yedi bölümden oluşan çalışmanın birinci bölümünde ko nu tanıtılmış, ikinci bölümde gecekondu olgusunun ortaya çıkışı, sorun haline gelişi ve gelişimi izlenmiş, üçüncü bölümde sorunun çözümüne yönelik yasal önlemler ve planla ma çalışmaları ortaya konmuştur. Dördüncü bölümde gecekon du bölgelerini planlı kentsel dokuyla bütünleştirmek ama - cıyla geliştirilen Islah îmar Planları incelenmiştir. Be ş inci bölümde konu Türkiye'nin birincil metrepol kenti İstanbul ölçeğinde ele alınmış, Islah îmar Planları uygu lama sonuçları araştırılmış, altıncı bölümde örnek bölge olarak seçilen Talatpaşa Mahallesindeki çalışmalar ortaya konmuştur. Yedinci bölümde ise araştırmadan çıkan sonuçlar irdelenmiş ve bunlara bağlı olarak gecekondu ıslah bölge bölg elerinin yeniden düzenlenmesinde kullanılabilecek bir plan lama yaklaşımı getirilmiştir.

A METHOD PROPOSAL FOR REPLANNING OF SQUATTER UPGRADING AREAS In this study, the squatter problem in Turkey has been investigated and a method is proposed for the integration of squatter areas with the planned districts of the city. Following the general introduction, chapter 2 explains how the squatter areas emerged and became problems. In developing countries, since the end of World War II and still continuing today, there has been a migration from rural to urban areas. This migration combined with a rapid increase in population has meant that the basic needs of settlement were not met and a new type of settlement was created, known in Turkey as Gecekondu. The importance of the new situation was not recognised in Turkey and this type of settlement spread rapidly to cover more than 50 % of the big cities. Chapter III outlines the legal measures and planning works for the solution of this problem. Before the period of `Planned Development` there were attempts to prevent this trend by passing various laws,but these laws stayed behind the developments. Each new law legalized the settlements already constructed but stated that future ones would be demolished. The problem however, continued to grow at an increasing rate. Planned development started in 19 61. The first 5 year plan was introduced in 19 63 and has been followed by further consecuntive 5 year plans up to the present day. In all of these plans, the Gecekondu problem received only a passing mention as a settlement problem and no account was taken of social, legal and economic aspects. In 1966 the number of squatter houses in Turkey was estimated at 450.000., but it was only this year that a Squatter Housing law was prepared which proposed the following 3 areas. XI1- Squatter Prevention Area 2- Squatter Elimination Area 3- Squatter Improvement Area The `Squatter Prevention Area` comprises of those areas reserved for building new dwellings to accomodate people from the squatter areas. The `Squatter Elimination Area` comprises those areas which will be demolished due to their poor condition/ provided that alternative accommodation is available. The `Squatter Improvement Area` comprises those areas where the buildings are in a reasonable condition but the infrastucture and social services are missing. One third of all squatter areas in Turkey fall into this category. Throughout this period the Goverment has mainly provided an organising function but has also been involved in construction and provided support for people to build their own houses through various organisations, eg. Turkish Real Estate, Credit Bank, Social Security Organization and the Land Office. This support has been given in the following ways: 1. Providing Land 2. Providing Land and Credit (with no advance payment) 3. Providing Land and Credit (with 25 % advance payment) In spite of all the legal measures and planning works; with time, the principle of people building accomodation for themselves has been replaced by owners extending their property to provide accommodation for rent and also building complete properties solely for the purpose of rental. The squatter areas have become very populous over time have now formed a political power. They have therefore been provided with infrastructure and social facilities generally in the periods before and after elections. However the squatter areas are often located in topographically rough terrain with very congested unplanned layouts, it has therefore not alyways been possible to provide these facilities. Because of the rapid migration from rural areas and the limited area of urban residential land available, there has been a sharp increase in land prices and the squatter areas have therefore been extended vertically by xiiadding additional floors to reduce the land prices per residence. Neighbourhoods comprising apartment blocks have therefore emerged. In some cases, owners of adjacent small plots have combined their land to provide sufficient area to construct an apartment block. In the squatter areas; a physical improvement from used, scavanged or poor quality material to standard material and a legal improvement from illegal dwellings to shared title, ie. from non-ownership to ownership, has taken place. The squatter areas which used to surround the cities when they first emerged, are now located within the city limits due to the growth of the cities. They therefore form unplanned areas in the central zones which benefit from all the facilities and services of the city. One of the methods developed to integrate these areas into the planned urban areas is through the introduction of upgrading plans. In Chapter 4, Upgrading Plans are discussed. Their characteristics, the places they are applied and reasons behind their need have been explained. Upgrading Plans aim to provide infrastructure and social services to these areas and to raise the standards of buildings to an acceptable level. However many problems have occurred during the application of these plans. The Government handed over its land, occupied with squatter houses to the Municipalities for distrubution to people who had obtained `The Title Allocation Document`. Thus any future improvements were stopped unless the Municipalities purchased the areas which they had previously distrubuted. The upgrading plans have therefore only suceeded in transfering publicly owned land to private individuals. In the fifth chapter the upgrading plans for various Municipalities of Istanbul have been investigated and it is considered that the application of these plans was not successful for the following main reasons: o The inability of the technical offices which were auto ri zed by the Mayor to give title allocation documents to the citizens. o The incorrectness and incompleteness of the existing maps and Cadastre drawings. o The inadequate number of staff who can supervise the approved works. o Applications relation to shared lots started before the ownership problem had been resolved. xiiio The very short time period of two to six months between approval of the maps to preparation of the upgrading plan. The Talatpaşa district which is investagated in the 6th chapter is one of the oldest squatter areas of Istanbul, being one of the 3 neighbourhoods of Şişli for which an upgrading plan had been prepared. This district has been chosen for research as it forms a good example of the previously mentioned squatter areas, which are now in the city centre and take advantage of all the services and privileges of the city but cannot be integrated with the planned urban framework. In the upgrading plan for this district, applications for individual lots have been adopted but no sufficient areas have been reserved for the provision of necessary facilities at the required locations, nor has any notice of ownership been taken. The problems mentioned above have also occured in this district and the plans have been canceled. Observations and studies carried out in this district showed that an illegal vertical construction has occured even though the plans have been cancelled. While the avarage number of storeys was 1.5 at the end 1988, it has now reached 2.7 and it is expected that this trend will continue. It is obvious that the continuing increase in the number of floors will attract additional people to the district, however the new infrastructure works do not allow for this increase. The following results were obtained from the work carried out in the various sub-provinces of Istanbul and the researches made in the sample Talatpaşa district: o Allowing for an increase to a total of 4 storeys for the existing 1..to 2 s to rey buildings causes an increase in the population density, thereby making the already insufficient facilities and infrustructure even worse. o Land owned by the Government or the Municipalities which is suitable for future applications is being trans fered to individuals. Difficulties are therefore created for these applications. The income from the urban lands which can finance future applications is directed to the individuals by granting them with title deeds or allowances for additional floors. o To the general population it appears that illegal activity is rewarded and therefore respect for the Municipality and planners is reduced. xivo Owners are allowed to develop their properties individually (building additional floors etc.) This destroys any tendency for organization. o The control mechanism is destroyed when ownership is given. It is natural that applications in the squatter areas will reflect the whole city., when it is considered that these areas are not isolated districts within the overall urban space. Therefor as concluded in chapter 7, different planning stages could be adopted varing from country planning scale to regional and urban planning in order to solve the problem. At the country planning scale, the most important factors concerning this issue are to follow policies which minimize migration by firstly controlling it with longterm balanced investments and secondly by decreasing the birth rate. While works for keeping people in their native lands are continuing, people migrating, can be accomadated in pre-choosen regions for which the infrastructure has been prepared before their arrival. It is obvious that such measures can only be taken by following policies which are not governed by the election periods. While these measure are being taken for the newcomers, the existing areas outside the plan limits must be taken as the renewal areas in the developing districts of the cities. There are 3 ways that can be adopted for such districts: 1) By accepting the existing situation as it is, arragements within lots can be carried out by demolishing the buildings which are in a state of disrepair or which have lost their functionalities, avoiding congestion, opening commonly used areas, providing the necessary facilities where required and while doing these increasing the density in certain places to accommodate the people whose houses are demolished to provide space for the social facilities. 2) In block size level by applying the 18-th item of the Reconstruction Law the blocks for which a proper solution cannot be brought under normal conditions can be replanned as a whole. All the units on the block can be reconstructed or they can be concentrated in big apartment blocks to provide more space for the green areas or the other social facilities. 3) The district as a whole can totally be replanned from the transportation system to the layout order. By introducing various planning steps, people living xvin the district can be moved either within the district or to an area outside the district on condition that they can come back when the program is completed. Each of these 3 methods can be used in isolation as well as in combination with the other 1 or 2, depending on the requirements. The method chosen for the planning of these districts must be; 1) The one which presents the best replies to the problem. 2. The one which fulfils the following criteria. o It must be legally suported o It must be economically rational and practically applicable. o It must be made up of planning steps. o It must have alternatives in terms of both planning and application. o It must not be contradicting either with the economical and social planning principles or with the general economical model of the country. The proposals, like keeping the area as a housing district or changing its functionality for establishing both housing and trade functions within, can only be put forward by taking into account the caharacteristics of the district, i.e. location, relations with other districts, transportation, development potential and by means of Master Plan decisions. In squatter upgrading areas the function to be applied affects the programs to be chosen and the scale of work to be carried out. For example protection, rehabilitation, and renewing programs can all be applied in various stages and scales if housing is going to be the areas' s main function. Whereas if a change in the function is being proposed by a Master Plan decision than the whole area will have to be cleared and renewed. In this study Talatpaşa district has been investigated. in lot, block and district scales in the wiew of the above mentioned princibles. The result of the investigations showed renewing on the lots basis was hot prefable due to the size of the lota varying from 41 m2 to 3094 m2 and the lack of land for the social facilities. The renewal process on block basis was also not suitable due to the big diffferences in the block sizes xviand the insufficient land remaining from the 35 % public share allocated by the Reconstruction Law to provide the facilities. In addition to these, the rough topographical nature of the terrain makes the use of the above diffucult. This study proposes a total district renewal for Talatpaşa considering that a function change might be required due to its close location to the crossing of major motorway routes and the adjacent trade district. If it is assumed that the district will change to be a trade and housing district, a trade axis can be formed in the most valuable central parts as a symbol of the new development. Outside the trade axis; a mixed area can be formed leading to the area allocated for housing after the land for infrastructure and the social facilities are reserved. The land and building prices can be kept high in the trade and transition zones to supply financal sources for the infrastructure and facilities. If the district is allocated for housing in the Master Plans, then it can be totally replanned within the scope of renewal action in accordance with the architectu ral and urban planning principles as a mass housing area. A widerspread and continuing program is required for the development of these areas, which are now valuable being within the city and still being owned by the local Municipalities. It must be realized that once the right of ownership is given to the people it would be very difficult to reverse the process. xvxx